Chapter 7 Cambodia’s Electricity Sector in the Context of ... 7-Cambodia's Electricity Sector in...

Chapter 7

Cambodia’s Electricity Sector in the Context of Regional Electricity Market Integration Kongchheng Poch Economic Institute of Cambodia, Caombodia Savong Tuy JICA-PILAC2, Cambodia August 2012 This chapter should be cited as Poch, K. and S. Tuy (2012), ‘Cambodia’s Electricity Sector in the Context of Regional Electricity Market Integration’ in Wu, Y., X. Shi, and F. Kimura (eds.), Energy Market Integration in East Asia: Theories, Electricity Sector and Subsidies, ERIA Research Project Report 2011-17, Jakarta: ERIA, pp.141-172.

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CHAPTER 7

Cambodia’s Electricity Sector in the Context of Regional

Electricity Market Integration

KONGCHHENG POCH

Economic Institute of Cambodia

SAVONG TUY

JICA-PILAC 2, Cambodia Office

Cambodia’s integration into the regional electricity market is a policy priority. With a constrained supply-side, the increasing demand posts a critical challenge for electricity sector development. Against this backdrop, this paper provides an overview of the current situation of Cambodia’s electricity sector and explores other critical issues in the sector. Diesel and heavy fuel oil is the major source of power generation as hydropower will be the successor source in the future. Tariffs range from US¢9-25/kWh for EDC grid and US¢40-80/kWh for rural areas. Electrification rate through grid expansion is about 24.72 per cent in 2009. Cambodia’s electricity tariff remains one of the highest in the region and the world. With a consolidate license, EDC, the state-owned utility, is the dominant key player in the electricity market. Two main institutions playing important roles in governing the electricity sector include MIME and EAC. The electricity sector remains underinvested. Only large scale investment projects are preferred in the market. High-voltage transmission connections, large-scale hydropower dams, and coal-fired plants have been the focused priority for power development thus far. Barriers to investments include huge capital requirement for large-scale projects, insufficient legal and institutional framework, and high administrative costs. Therefore, it is essential that national grid development is accelerated and more investment is encouraged in order to reduce current high tariffs. Investment climate must be enhanced to be conducive to foreign and local investment.

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1. Introduction

Energy cooperation is one of the focused priorities in the East Asia Summit (EAS)

region. To advance this cooperation, energy market integration is, among other things,

laid out by the member countries to address barriers of trade and investments in the

energy sector across the region. Being a member of the sixteen-countries-EAS region,

Cambodia, one of the poorest countries in the region, needs to take steps to accelerate

this envisaged integration and to fulfill its increasing demand for electricity for

continued economic development.

Cambodia has achieved strikingly high rates of economic growth over the past ten

years; the real gross domestic product (GDP) grew on average 8.0 % per annum. This

robust growth has stimulated substantially-increasing demands for electricity. With a

constrained supply-side, Cambodia faces critical challenges in satisfying this greater

demand. In this regard, regional electricity market integration serves as a useful tool for

Cambodia to optimize benefits enhancing the domestic electricity sector and to further

regional energy cooperation.

Despite remarkable improvement in the energy sector, the electrification rate in

Cambodia remains low. The majority of the population is not connected to electric

power networks. Moreover, electricity cost remains one of the highest in the region and

the world. Investment in the electricity sector represents a small proportion of the total

investment needed for electricity sector development.

Although electricity imports from neighboring countries have been on the rise, the

supply of electricity still suffers shortage and reliability. Electricity market players are

diverse, ranging from small Rural Electricity Enterprises (REEs) and Independent

Power Producers (IPPs) to the state-owned utilities while a national power grid has not

yet materialized. In terms of regional cooperation, the government’s current policies

and strategies have significant effects and implications for electricity supply and

coverage in Cambodia.

Against this background Cambodia’s electricity sector has steadily developed in the

past decade, although its development has not been at parity with the pace of economic

development. Therefore, to better understand the current situation of the Cambodia’s

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electricity sector, this paper considers the overall situation and progress of the sector in

the context of regional integration. It is crucially important to shed light on furthering

development of the electricity sector in Cambodia and integrating Cambodia’s

electricity market into the region.

With the main purpose of providing a general background of the electricity sector in

Cambodia, the study has five objectives as follows:

1) To lay out an overview of Cambodia’s electricity sector covering issues such

as supply, demand, transmission, tariffs, investment, access, electrification,

and government strategies and policies;

2) To summarize present strategies and policies of the Cambodian government in

regards to the ASEAN Power Grid (APG);

3) To understand the current situation of investment in the electricity sector

covering issues such as key market players, main investment barriers, and the

attraction of foreign investment in the sector;

4) To illustrate a case study of Cambodian electricity imports from Vietnam; and

5) To explore other issues which are significant and relevant to electricity sector.

2. Overview of the Cambodian Economy

Cambodia, officially known as the Kingdom of Cambodia, is a member of the

Association of the Southeast Asian Nations (ASEAN) and Greater Mekong Subregion

(GMS). Situated at the heart of the GMS, Cambodia is a land of rice and forest covered

by the Mekong River and Tonle Sap Lake (ESMAP, 2005). It is bordered with

Thailand and the gulf of Thailand in the West and South respectively, Vietnam in the

East, and Lao PDR in the North. With a total area of 181,035 Km2, Cambodia has a

total population of about 15 million, of which approximately 80 % live in rural areas.

Cambodia had gone through several civil wars over three decades since the military

coup d’état in 1970. In particular, the Cambodian economy had been gravely destroyed

during the genocidal Democratic Kampuchea regime during 1975-1979. As a result, the

economy plunged into almost zero levels of growth because either physical or non-

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physical infrastructure had been demolished. The economy began to develop from this

level as a socialist economy before it embarked upon free-market economy in 1989

(MoE, 2002). The country had its first national election in 1993, and the economy

developed gradually and steadily to be a post-conflict economy in 1999 when

reconciliation among all political tendencies was successfully accomplished.

In the last decade, Cambodia enjoyed exceptionally high rates of economic growth.

The economy grew 8.0% per annum on average during 2001-2010.1 The economy

experienced the highest growth rate at 13.3 percent in 2005. Later, it declined from

6.7% in 2008 to 0.1% in 2009 due to global economic downturn in 2008/2009 because

Cambodia’s major economic sectors such as garment, tourism, and construction

dramatically contracted. Real GDP growth started to edge up again to around 6.0% in

2010 and was estimated to realize a rate of 7.8% in 2011 (Khin, et al. 2012). In the

meantime, Cambodia needs to achieve at least an average growth rate of 6-7% per

annum to achieve sustainable poverty alleviation in accordance with government policy

ambitions. In this regard, development of the electric power sector needs to be hastened

to support sustainable growth and economic development.

Figure 1: Cambodia's Real GDP Growth Rate over 2001-2011

Source: Data compiled from NIS and EIC estimate (2011).

1 Data compiled from the National Institute of Statistics (NIS).

7.4%

6.6%

8.5%

10.3%

13.3%

10.8%10.2%

6.7%

0.1%

6.0%

7.8%

0.0%

2.0%

4.0%

6.0%

8.0%

10.0%

12.0%

14.0%

2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011

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3. Electricity in the Energy Sector

3.1. Overall Situation

The power sector in Cambodia is supplied by different sources such as heavy fuel

oil (HFO), diesel, gasoline, gas, wood, coal, hydropower, wind and solar energy,

biomass, and biogas (World Bank, 2006). The major source of power generation is

diesel and HFO. Cambodia actively seeks other alternative sources which have high

possibility for power generation. Noticeably, hydropower, which holds considerable

potentials for power production in Cambodia, will become the major source in the long

term (World Bank, 2006).

Electric power supplied throughout the country is sourced from three different types

of licensees including the state-owned Electricite du Cambodge (EDC), IPPs, and

consolidated licensees including REEs. However, REEs supply electricity typically in

the rural areas. As shown in the following Figure 2, the capacity of electricity sent out

by IPPs accounts for approximately 90.95% of electricity supply in Phnom Penh,

followed by 4.82% by EDC and 4.22% by consolidated licensees.

Figure 2: Proportion of Energy Sent Out by Licensee in 2010 in Phnom Penh (%)

Source: EAC Annual Report 2010.

90.95

4.22 4.82

0

10

20

30

40

50

60

70

80

90

100

Independent Power Producers Consolidated Licensees Electricite Du Cambodge

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Although the Electricity Authority of Cambodia (EAC) reports the usage of

different sources of power, the main source of power in which licensees across the

country are utilizing is diesel which is imported from abroad making the electricity tariff

very volatile. In 2010, diesel accounted for almost 93% of the total power sources used

to generate electricity (Figure 3).

This indicates that the price of electricity is rather unstable because it is attached to

the cost of diesel. Given the fact that Cambodia is an oil-importing country, the cost of

diesel is quite sensitive to global market movements; thus, the price of electricity moves

generally along with the fluctuation of the cost of diesel. It is worthwhile noting that

the volatility of the electricity price significantly affects the ability of consumers to pay

electricity bills and impacts investors’ sentiments.

Figure 3: Proportion of Energy Sent Out by Sources in 2010 (%)


According to the EAC, consumers’ demand for electricity increases every year;

hence, the demand for electricity-producing capacity installed must also be increased. In

2002, the number of consumers was only 182,930 (Table 1). Consumer numbers

increased about 268% to reach 672,709 in 2010. In the meantime, installed capacity

edged up around 310% from 614.03 million kilowatt-hour (kWh) in 2002 to 2,515.67

million kWh in 2010. Within the next 15 years, the demand of power in the country is

3.28

92.81

0.60 3.31

-

10.00

20.00

30.00

40.00

50.00

60.00

70.00

80.00

90.00

100.00

Hydropower Diesel/HFO Wood, other biomass

Coal

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expected to increase by as much 500% reaching about 3,000 Megawatts (MW) in 2025

(Phnom Penh Post (PPP), 2012).

Table 1: Number of Energy Consumers by Year

Items 2002 2003 2004 2005 2006 2007 2008 2009 2010

Number of consumers 182,930 231,964 272,668 306,176 358,270 415,141 487,426 552,521 672,709

% increase over previous year

26.80 17.55 12.29 17.01 15.87 17.41 13.35 21.75

Energy available in million kWh

614.03 692.66 814.13 977.26 1,203.20 1,516.73 1,858.36 2,076.99 2,515.67

%increase over previous year 12.81 17.54 20.04 23.12 26.06 22.52 11.76 21.12

Energy sold in million kWh 525.69 599.04 702.31 858.36 1,057.16 1,349.12 1,664.40 1,853.50 2,254.04

%increase over previous year 13.95 17.24 22.22 23.16 27.62 23.37 11.36 21.61


With current supply capacity, reliability remains a concern for consumers.

Blackouts have been routinely reported, especially in Phnom Penh municipality as the

supply capacity reaching peak level, particularly in the dry season, is still below the

demand. Phnom Penh is currently requires electricity up to 400 MW per day, but the

current supply available is only 290 MW of which half is imported from Vietnam (PPP,

2012). Therefore, there is a huge need for investment in electricity to fulfill demand

which is steadily increasing over time. An overview of electricity supply is shown in the

following Table 2.

Table 2: Electricity Sector in Cambodia at a Glance

Description Unit 2009 2010 % Change

Electricity generated million kWh 1,234.59 968.36 (21.56)

Electricity imported from Thailand million kWh 324.25 385.28 18.82

Electricity imported from Vietnam million kWh 518.15 1,162.03 124.27

Total electricity import million kWh 842.40 1,547.31 83.68

Total electricity available million kWh 2,076.99 2,515.67 21.12

Generation Capacity kW 372,129 360,078 (3.24)

Number of consumers # 552,521 672,709 21.75

Electricity sold to consumers million kWh 1,853.50 2,254.04 21.61

Overall loss % 10.76 10.40


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According to the Asian Development Bank (ADB), the number of households

supplied with electricity from the main electricity grid was 633,123 in 2008 (ADB,

2011). As set out in the development plan, this number is expected to increase to

1,131,190 by 2013. Electrification rate through grid expansion in Cambodia is about

24.72% in 2009, but it is expected to move up to 35.17% by 2013 (ADB, 2011).

Cambodia is on track to achieve a target of increasing the length of high-voltage

transmission network by 100 Km from 2005 to 2010 and increasing per capita use of

electricity from 54 kWh in 2005 to 89 kWh in 2010 in terms of improving access to a

reliable and affordable power supply (ADB, 2007a). Nonetheless, challenges remain in

meeting the rising demand of the growing economy, improving access to electricity, and

reducing its costs in rural areas.

3.2. Electricity Tariffs

Electricity service providers (ESPs) set prices for their electric power services

supplied to consumers; however, the set prices require approval from the EAC. As

stipulated in the electricity law, the approval is required to ensure that prices are

reasonably affordable by consumers and businesses of ESPs are carried out efficiently,

qualitatively, sustainably and transparently (EAC, 2008). The EAC determines and

reviews the tariff rates, charges, and service terms and conditions for the electricity

service provided by licensees (ESPs). Within ninety days from the receiving date of any

application by licensees requesting the EAC to determine or revise their tariff, the EAC

either approves, revises, or disapproves requests (Royal Government of Cambodia

(RGC), 2001).

Cost of electricity generation is the single largest component of the price of

electricity supplied by licensees to consumers. In this regard, unlike other commodities

in the market, the electricity price is not determined by demand and supply interaction.

It is very much dependent on input factors of the supply side. Specifically, it hinges on

the cost of producing electricity per kilowatt-hour. Moreover, electricity is a natural

monopoly service in Cambodia; ESPs have significant power in setting the electricity

tariff and manipulating the electricity market.

On the one hand, electricity tariff rates in Cambodia vary considerably depending

on the source of electric power generation. Almost 95% of the cost of electricity supply

is related to the cost of fuel. Licensees generating electricity from diesel or HFO or

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purchasing electricity from IPPs, with costs of electricity purchase linked to the cost of

fuel, the price of electricity supply is extremely high. Moreover, it varies critically

according to the fuel cost.

The cost of electricity supplied by hydropower plant or purchase from neighboring

countries fluctuates little. As a result, the tariff of electricity provided to consumers by

licensees getting electric power from such sources does not change frequently.

On the other hand, different types of tariffs have been applied by different types of

ESPs to different categories of customers. IPPs importing electric power supply from

neighboring countries apparently have the tariff rates lower than IPPs that generate

electric power using diesel or HFO (EAC, 2007).

Given the fact that tariffs are set by each ESP based on full-cost recovery principle,

the tariff levels, vary from area to area; and, there is a huge discrepancy between urban

and rural customers. Rural customers generally pay higher tariffs than their urban

counterparts (CRCD, 2006b). As Phnom Penh residents pay the electricity bill at a

tariff rate of around 18.00 US¢ /kWh, some rural residents pay the tariffs rate as high as

USD 1.00/kWh. This large gap is due to various factors such as differences in supply

capacity of ESPs, economy of scale, load factor, fuel transportation cost, cost of capital

and financing, power supply losses, and risk premium for rural customer’s low capacity

to pay the bill. The following Table 3 and 4 present the fundamental tariffs charged by

EDC by categories of consumers and distribution areas, respectively.

Table 3: Tariff of EDC in 2010 in Phnom Penh, Kandal and Kampong Speu Province

Categories of Consumers Tariffs (US¢ /kWh) Condition

Domestic in Phnom Penh and Takhmao Town of Kandal Province

15.25 All kWh if monthly consumption does not exceed 50 kWh

18.00 All kWh if monthly consumption exceeds 50 kWh

Domestic in Kampong Speu province

18.00 All domestic consumers

Embassy, NGO and foreign residents and institutions

20.5

Customers paid by government budget, Commercial and industrial customers

Tariff rate= average cost of total electricity purchased in previous month + 3.6 US ¢ /kWh

For small commercial and Industrial customers


For medium commercial and Industrial customers


For big commercial and Industrial customers

Tariff rate= average cost of total electricity purchased in previous month+2.0 US Cents/kWh

For commercial and Industrial customers who are connected directly to MV


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Table 4: Electricity Tariff of EDC at Other Provinces in 2010

Distribution Areas of EDC Tariffs

(US Cents/ kWh) Condition

Provincial Town of StuengTreng 30.5 All consumers

Provincial Town of Ratanakiri 16.75 All consumers

Provincial Town of Kampot 27.5 All consumers

Provincial Town of Prey Veng 30.5 All consumers

Memot 12.5 Bun Rany Hun Sen Primary and High School

16.25 Small consumers

12.5 Medium consumers

11.5 Medium Voltage

Ponhea Kraek and Bavet

16.25 Small consumers

12.5 Medium Voltage

11.5 Medium Voltage

Kampong Trach 16.25 Small and medium

11.5 Big consumers

Svay Rieng, Kampong Row, SvayTeap 16.25 All consumers


Cambodia’s electricity tariff is one of the most expensive in the Southeast Asian

region. Tariff rates range from US¢9-25 per kWh for EDC grid and US¢40-80/kWh for

rural areas (Lieng, 2010). As shown in Table 5 below, the average electricity prices for

industrial consumers range from US¢11.71 to US¢14.63 which is the highest among the

ASEAN economies.

Table 5: Electricity Tariff in ASEAN Nations (US¢ /kWh)

Country Residential Commercial Industrial

Brunei 3.82-19.11 3.82-15.29 3.82

Cambodia 8.54-15.85 11.71-15.85 11.71-14.63

Indonesia 4.60-14.74 5.93-12.19 5.38-10.14

Lao PDR 3.34-9.59 8.80-10.36 6.23-7.34

Malaysia 7.26-11.46 9.67-11.10 7.83-10.88

Myanmar 3.09 6.17 6.17

Philippines 6.65-10.52 -- --

Singapore 19.76 10.95-18.05 10.95-18.05

Thailand 5.98-9.90 5.55-5.75 8.67-9.43

Vietnam 2.91-9.17 4.38-15.49 2.30-8.32

Source: ASEAN Center for Energy (2011).

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Table 6 demonstrates monthly electricity prices of EDC by consumer categories in

Phnom Penh, Kandal province and Kampong Speu provincial town in 2010. The prices

on average are quite high across consumer categories. They are in the range of US¢18-

23 per kWh.

Table 6: Monthly Electricity Tariffs of EDC for Phnom Penh, Kandal Province and Kampong Speu Provincial Town in 2010 (US Cents/kWh)

Categories of Consumers

Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec

Small 22.99 20.26 20.05 19.9 20.21 19.92 19.57 19.21 19.32 19.25 19.5 19.68

Medium 22.19 19.46 19.25 19.1 19.41 19.12 18.77 18.41 18.52 18.45 18.7 18.88

Big 21.79 19.06 18.85 18.7 19.01 18.72 18.37 18.01 18.12 18.05 18.3 18.48

Medium Voltage 21.39 18.66 18.45 18.3 18.61 18.32 17.97 17.61 17.72 17.65 17.9 18.08


There are three important reasons behind the skyrocketing prices in the country.

First, although Cambodia is endowed with an abundance of hydropower resources, it

depends heavily on costly fuel-based engines or generators to produce electricity.

Furthermore, accessibility to sources of electric power is quite limited. While coal

power plants have been constructed to provide more electric power to consumers, only

several hydropower plants are being operated to extract electricity.

Second, with isolated electricity generation systems across the country, the

electricity infrastructure stays vastly fragmented although considerable progress has

been made. According to Breeze (2010), Cambodia’s electricity infrastructure was

almost completely destroyed by war as were facilities of electricity supply (EAC, 2008).

Presently, the national grid is being constructed to bring electricity supply to provinces

throughout the country (EAC, 2011).

Third, high tariff is caused by significant electric power loss. Inefficient electric

power facilities, small fragmented diesel-based generation systems, and lack of

interconnection within the system can explain this electric power loss very well (EAC,

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2008). Overall power loss for the country is on average 11.05 %; however, the power

loss for rural areas stays around an extremely high rate of 25.34 % (EAC, 2008).

The following Table 7 presents the energy situation in Cambodia with power loss in

2010 which is supplied by EDC only.

Table 7: Energy Situation Supplied by EDC in 2010

Area of Supply Installed Capacity

(kW)

Energy Purchased

(kWh)

Energy Sent Out

by Generation

(kWh)

Energy Transferred

from/to other

Branches (kWh)

Energy Sold to Other

Licensees (kWh)

Number of Consumers

Energy Sold to

Consumers (kWh)

Loss in %

Phnom Penh Grid System 45,560 1,676,055,488 31,702,495

60,412,598 246,973 1,488,183,010 9.32

Banteay Meanchey Grid System 15,580 272,123,600 1,287,558

6,899,043 66,300 231,476,332 12.81

Kampot 3,080 3,951,740 665,179 15,841,180 546,046 7,168 14,559,593 26.16

Sihanoukville 5,600 51,522,280 8,655,407

721,770 10,632 57,086,359 3.94

Kampong Cham

34,951,440

12,499,998 10,474 18,683,236 10.78

Prov.Town of Prey Veng 1,640 4,032,974 631,732

418,520 4,445 3,695,679 11.80

Prov. Town of Steung Treng 1,640 5,748,768 50,784

2,634 4,768,664 17.78

Pro. Town of Ratanakiri 960 6,359,699 1,766,000

2,904 7,448,230 8.34

Prov. Town of Svay Rieng 1,000 18,039,900 108,640

173,730 10,789 16,280,618 9.34

Khum Bavit

60,861,000

2,494 57,564,164 5.42

Memot District

10,403,000

4,015 9,759,063 6.19

Ponhea Krek District

25,977,000

14,099,259 2,385 10,550,045 5.11

Kampong Trach District

28,585,992

(15,841,180) 4,060,892 2,513 8,188,704 1.73

Mondulkiri 670

1,821,545

1,328 1,571,300 13.74

Keoseyma District

764,700

861 589,694 22.89

Total 75,730 2,199,377,581 46,689,340

99,831,856 375,915 1,930,404,691 9.61


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4. Governance of the Electricity Sector

4.1. Policy and Regulatory Framework

According to the Royal Government of Cambodia (RGC), there are four main

objectives of energy sector development policy detailed out as follows:

1) Providing an adequate supply of electricity throughout the country at

reasonable and affordable price;

2) Ensuring reliable and secure electricity supply which facilitate investment in

Cambodia and development of the national economy;

3) Encouraging exploration of environmentally and socially acceptable energy

resources needed to supply all sectors of the Cambodian economy; and

4) Encouraging efficient use of energy to minimize environmental effects

resulting from energy supply and use.

To prepare a governing framework for the electric power supply and services

throughout the country, the “Law on Electricity” was adopted by the National

Assembly on November 6, 2000 and then promulgated by the Royal Degree on

February 2, 2001. This law covers all activities related to the supply, provision of

services and use of electricity, and other associated activities of power sector. It helps

reform the current electricity sector, and is endorsed to boost private investors in the

power sector in a fair, just, and efficient manner for the benefit of the Cambodian

society.

Overall, this law has key components including:

1) Establishing the principles for operation of the sectors;

2) Establishing favorable conditions for competition, private investment, private

ownership and commercial operation of the electric power industry; and

3) Establishing and defining the functions of the EAC and the Ministry of

Industry, Mine and Energy (MIME).

In this regard, there are three main players who have considerable power in the

electricity sector in Cambodia: the MIME, EAC and EDC. The EDC is the most

influential of the three in the electricity market. Other players in the market include

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IPPs, REEs, and other licensees that import electricity from neighboring countries or

own stand-alone diesel generators.

In addition to the Law on Electricity, RGC also specifies the development of the

energy sector in the National Strategic Development Plan (NSDP) with the prioritized

aims of increasing electricity supply capacity and reducing tariff rates to an appropriate

level while strengthening institutional mechanism and management capacity. To

achieve the desired goals, the development of the electricity sector is set out in the

Rectangular Strategy Phase II of the fourth-mandate RGC.

To ensure sustainable development of the electric power sector, an electrification

master plan was worked out for: (1) electricity generation development including

hydropower resources development and development of coal or gas power plant, (2)

electricity import to coordinate the development of the border zones of the kingdom and

(3) the development of transmission grid throughout the country in order to establish the

electricity transmission system of Cambodia (EAC, 2009). Furthermore, RGC will

encourage the construction of low cost electricity generating plants by using local

energy sources such as hydro-power, natural gas, and coal.

As the electricity sector in Cambodia is fundamentally governed by the Law on

Electricity, sub-degrees and other regulations have subsequently been issued by the

EAC. Table 8 presents a list of noticed electricity legal documents.

Table 8: Important Legal Documents in Electricity Sector

No. Name of Standard Documents Promulgated by Date Promulgated

1 Electricity Law of the Kingdom of Cambodia The King February 2, 2001

2 Sub-Degree on the Rate of the Maximum License Fees applicable to Electric Power Service Providers in the Kingdom of Cambodia

RGC December 27, 2001

3

Procedures for Issuing, Revising, Suspending, Revoking, or Denying Licenses

EAC

September 14, 2001

Revision 1 December 12, 2002

Revision 2

4 Regulations on General Conditions of supply of Electricity in the Kingdom of Cambodia EAC

January 17, 2003

Revision 1 December 17, 2004

5 Regulatory Treatment of Extension of Transmission and Distribution Grid in the Kingdom of Cambodia

EAC October 28, 2003

6 Regulations on Overall Performance Standards for Electricity Suppliers in the Kingdom of Cambodia

EAC April 2, 2004

7 Procedure for Filing Complaint to EAC and for Resolution of Complaint by EAC

EAC April 2, 2004

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No. Name of Standard Documents Promulgated by Date Promulgated

8 General Requirements of Electric Power Technical Standards of the Kingdom of Cambodia MIME

July 16, 2004

First Amendment August 9, 2007

9 Sub-Degree on Creation of Rural Electricity Fund of the Kingdom of Cambodia

RGC December 4, 2004

10 Sub-Degree on Principles for Determining the Reasonable Cost in Electricity Business

RGC April 8, 2005

11 Prakas on Principles and Conditions for issuing Special Purpose Transmission License in the Kingdom of Cambodia

MIME July 21, 2006

12 Specific Requirements of Electric Power Technical Standards of the Kingdom of Cambodia

MIME July 17, 2007

13 Regulations on General Principles for Regulating Electricity Tariffs in the Kingdom of Cambodia

EAC October 26, 2007

14 Procedures for Data Monitoring, Application, Review and Determination of Electricity Tariff

EACOctober 26, 2007

15 Grid Code EAC May 22, 2009


4.2. Institutions

Under the electricity law, there are two main institutions playing important roles in

governing the electric power sector in Cambodia, namely MIME and EAC. Whilst

MIME is mainly responsible for the formulation of policies and strategies, EAC is a

legal public entity being granted the right from RGC to be an autonomous agency to

regulate the electricity services and to govern the relation between the delivery,

receiving, and use of electricity. Roles of these two government agencies are illustrated

in the following Figure 4.

Figure 4: Governance of the Electricity Sector in Cambodia


Ministry of Industry, Mines and Energy

- Energy Policies- Electric Power Strategies- Power development plan- Technical, Safety, Environment Standards- Other Duties

Electricity Authority of Cambodia

- To issue regulations- To issue Licenses to Electric Power Service Providers- To review cost and approve tariffs - To resolve disputes- To regulate, impose penalty

Electric Power UsersElectric Power Supplies

Royal Government of Cambodia

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4.2.1. Ministry of Industry, Mines and Energy

As set out in the Law on Electricity, the MIME has the following roles:

Responsible for setting and administrating the government policies, strategies and planning in the energy sector.

Providing the EAC information on policies, strategies, planning of energy sector and its decision on: Investments in the rehabilitation and development of the energy sector in

the short, medium and long term; Restructuring, private sector participation and privatization of public

utilities; Promotion of the use of indigenous energy resources in the generation of

electricity; Planning and agreements on the export and import of electricity; Subsidies to specific classes of customers and priorities regarding

consumers of electricity; Promotion of efficiency in generation, transmission, distribution and

consumption of electricity and action taken to create a comprehensive electricity conservation program for Cambodia; and

Electricity sector emergency and energy security strategies.

4.2.2. Electricity Authority of Cambodia

The EAC is a legal public entity, being granted the right from the RGC to be an

autonomous agency to regulate electricity services and to govern the relation between

the delivery, receiving and use of electricity.

The Law on Electricity regulates the roles of the EAC as follows:

To issue, revise, suspend, revoke or deny the licenses for the supply of electricity services;

To approve tariff rates and charges and terms and conditions of electric power services of licensees, except where the authority (EAC) consider those rates or charges and terms and conditions are established pursuant to a competitive, market-based process;

To order to implement guidance procedures and standards for investment programs by licensees;

To review the financial activities and corporate organization structure of licensees to the extent that these activities and organization directly affect the operation of the power sector and the efficiency of electricity supply;

To approve and enforce the performance standards for licensees;

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To evaluate and resolve consumer complaints and contract disputes involving licensees, to the extent that the complaints and disputes relate to the violation of the condition of licenses;

To approve and enforce a uniform system of accounts for all licensees;

To prescribe fees applicable to licensees;

To determine the procedures for informing the public about affairs within its duties, in order to ensure that the EAC comply with the principle of transparency;

To issue rules and regulations and to make appropriate orders, and to issue temporary and permanent injunction for electric power service;

To impose monetary penalty, disconnect power supply, suspend or revoke the license for the violations of this Law, standards and regulations of EAC; and

To require the electric power services and the customers to obey the rules relating to the national energy security, economic, environment and other government policies.

4.2.3. Electricite Du Cambodge

According to the EDC Annual Report 2007, the EDC, the state-owned public

utilities entity, has the following functions and responsibilities:

To develop, generate, transmit and distribute electric power throughout Cambodia;

To operate as a commercial entity, independently organize production and operation in accordance with market demand and seek to earn a profit, increase the value of its assets, create economic, benefits and raise labor productivity;

To prepare, build, own, finance, lease and operate power generation and sub-stations, transmission lines, distribution networks and other infrastructure necessary;

Eliminate inefficiencies from operation, reduce unnecessary costs;

Maximize the output and reliability of the assets, customer satisfaction with higher quality and better services; and

To be polite, receptive, act promptly with customers’ concerns. Co-owners of the EDC are the MIME and the Ministry of Economy and Finance

(MEF). Based on the EAC Annual Report 2010, the EDC is currently holding a

consolidate license that has the following components:

1. Generation license: giving the right to EDC to generate electricity for the

purpose of supply to its transmission and distribution system.

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2. National Transmission License: giving the right to EDC to transmit electricity

for the purpose of supply to any distribution system and bulk power consumers

throughout Cambodia.

3. Distribution license: giving the right to EDC to distribute and supply

electricity to any premises in the authorization distribution areas.

Figure 5: Structure of the Electricity Sector

Source: Adapted from MIME (2009).

4.3. Electricity Service Providers

There are different types of licensees providing electric power services throughout

the country. They are the state-owned EDC, private entities including IPPs in

provincial towns, provincial department of MIME electricity operators, licensees in

small towns, and REEs (World Bank, 2006).

Royal Government of Cambodia (RGC)

PEU IPP PEC EDC

Cambodia’s Electricity Business

Electricity Authority of Cambodia (EAC)

Ministry of Industry, Mines and Energy (MIME)

Ministry of Economy and Finance (MEF)

Ownership of EDC

Policy; Planning; Development; Technical standard, Tariff, License, Reviews the planned investments

Finance and performance; Enforcement of regulations, rules and standards PEU: Provincial Electricity Utility; PEC: Provincial Electricity Company; EDC: Electricite Du Cambodge; IPP: Independent Power Producers

159

The EDC, a national utility enterprise co-owned by MIME and MEF, was granted a

consolidate license from the EAC to generate, distribute and transmit electricity

throughout Cambodia. It currently supplies electricity in the areas of Phnom

Penh/Kandal, eight provincial towns, and four small isolated systems near the

Vietnamese border. As a consolidate licensee, the EDC can also generate power up to

95 MW and purchase from IPPs around 86.4 Megawatts in 2004 (CRCD, 2006a).

Licensed ESPs have been dramatically increased during the past seven years. This

increase has edged up from 104 valid licensees in 2004 to 278 in 2010, an increase of

167 percent. However the supply of electricity is still in shortage, especially in Phnom

Penh capital city, and is accompanied by high tariffs. REEs operate small diesel

generators and produce electricity for their own use and for neighboring customers.

Their supply operation ranges from twenty to a few hundred customers. The number of

REEs in the country overall was estimated at around 500 (CRCD, 2006a).

Table 9: Types of ESPs with Installed Capacity (MW) in 2001

Supplier Areas Supplied Installed Capacity

Electricite du Cambodge (EDC)

6 Major towns, including Phnom Penh (MIME 2002)

32

Independent Power Producers selling to EDC

Phnom Penh and Kompong Cham

127

Provincial Electricity Operators (provincial departments of MIME)

10 Provincial towns 14

Rural Electricity Enterprises (REE) operating mini-grids

4 Provincial towns and hundreds of smaller towns and villages (estimated 600 REEs)

60

Battery Charging Services (REEs which do not also operate a mini-grid)

1500 battery charging services (REEs) in hundreds of towns

38

Imported Power from Thailand and Vietnam (22kV lines)

7 Borders towns 15

Private stand-by diesel generation (large scale only)

All areas, bug mainly Phnom Penh and Siem Reap

116

Total 402

Source: CRCD 2004.

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5. Regional Cooperation and Trade

5.1. ASEAN Power Grid

Shared concerns among the ASEAN nations over energy security and sustainability

are the key drivers for the opening up of energy markets within the region. To

accentuate energy cooperation, the Heads of ASEAN Power Utilities Authorities

(HAPUA) was established in 1981. However, little progress had been achieved until

1999 when the ASEAN Plan of Action for Energy Cooperation 1999-2004 (APAEC), a

five-year plan covering energy cooperation which is a component of the ASEAN Vision

2020, was adopted. This was followed by the second five-year APAEC 2004-2009

which was endorsed by ASEAN energy ministers in 2004; Both APAECs consists of six

programs including ASEAN Power Grid (APG), Trans-ASEAN Gas Pipeline (TAGP),

coal utilization, energy efficiency and conservation, renewable energy utilization, and

regional energy policy and planning.

APAEC 2010-2015 is the third action plan for the implementation of energy

cooperation, which continues from the previous two series of APAEC. This third

APAEC enacted in 2009 composes of seven programs including: (1) APG, (2) trans-

ASEAN gas pipeline, (3) coal and clean coal technology, (4) renewable energy, (5)

energy efficiency and conservation, (6) regional energy policy and planning, and (7)

civilian nuclear energy.

In this regard, APG remains one of the key thrusts in energy cooperation; the

implementation of APG is under the supervision and coordination of HAPUA. The

implementation of APG so far is in the form of bilateral arrangements among member

countries (APAEC, 2009). As of June 2011, the implementation plan laid out 16

projects proposed cross-border interconnection bilaterally; the plan then proposes

gradually enlarging to a sub-regional basis aiming to form a totally integrated region. Of

the 16 interconnection projects, 4 are in operation, 3 are under construction, and 9 are

under preparation (e.g. study or negotiation) (Table 10).

Enhancement of bilateral political relations between member countries and closer

regional energy cooperation were recorded as the benefits of the operation of the four

completed interconnection projects (Nicolas, 2009).

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Figure 6: Interconnection of Power Grid in ASEAN

Source: Power Engineering International

Table 10: Status of Implementation of Interconnection Projects under APG

No. Project Status

1 P. Malaysia – Singapore Operation

2 Thailand - P. Malaysia Operation

3 Sarawak - P. Malaysia Preparation

4 P. Malaysia – Sumatra Preparation

5 Batam – Singapore Preparation

6 Sarawak - West Kalimantan Preparation

7 Philippines – Sabah Preparation

8 Sarawak - Sabah – Brunei Preparation

9 Thailand - Lao PDR Construction

10 Lao PDR – Vietnam Construction

11 Thailand – Myanmar Preparation

12 Vietnam – Cambodia Operation

13 Lao PDR – Cambodia Construction

14 Thailand – Cambodia Operation

15 East Sabah - East Kalimantan Preparation

16 Singapore – Sumatra Preparation Source: Compiled from Hermawanto (2011).

162

Cambodia joined ASEAN as the 10th member country in 1999. Being a signatory

party of the Memorandum of Understanding on ASEAN Power Grid (APG-MoU)

endorsed in 2007, Cambodia has duties to fulfill the objective of the MoU that states

that “member countries agree to strengthen and promote a broad framework for the

Member Countries to cooperate towards the development of a common ASEAN policy

on power interconnection and trade, and ultimately towards the realisation of the

ASEAN Power Grid to help ensure greater regional energy security and sustainability

on the basis of mutual benefit.”

Against this backdrop, Cambodia has actively implemented the agreed plan of

actions. Cambodia has completed the construction and put into operation the two

projects under the APG framework. They are Project No. 12 and 14, which is the

bilateral arrangement between Cambodia and Vietnam, and Cambodia and Thailand,

respectively. However, it is noteworthy that under Project No. 12 and No. 14, as well as

Project No. 1 and No. 2 which are presently under operation, new sub projects have

been proposed to promote further interconnection in the region.

There is no specific policy document to carry out the APG in Cambodia. Given the

proposed projects in the APG framework are bilateral agreements among member

countries in characteristics, Cambodia has incorporated those agreed projects into its

overall national power development plan. In this regard, the Power Sector Development

Plan (PSDP) was prepared by MIME in 2007 (EDC, 2010).

A rural Electrification Mater Plan focusing on the use of renewable energy has also

been prepared and implemented. To implement the Rural Electrification Policy, the

government has established a Rural Electrification Funds (REF) to promote equity in

access to electricity supply services and encourage private sector to participate in

investments in rural power supply services in a sustainable manner, in particular to

encourage the use of new technologies and renewable energy. These efforts have been

undertaken not only to advance the domestic electricity sector but also to facilitate

regional cooperation under the frameworks of GMS, ASEAN, and EAS, and other sub-

regional cooperation.

Moreover, the RGC will encourage construction of electricity transmission lines

covering all parts of the country to enable the supply of quality and low cost energy

from all sources to meet the demand in cities, provinces, urban and rural areas. The

163

government has indicated that it intends to gradually integrate Cambodia’s electric

power system into the networks of the GMS and ASEAN countries (Ministry of

Planning (MoP), 2009).

5.2. Greater Mekong Subregion

As initiated by the ADB, the Greater Mekong Subregion Economic Cooperation

Program (GMSECP) was launched by six member countries around the Mekong River

including Cambodia, China, Lao PDR, Myanmar, Thailand, and Vietnam. The energy

sector is one of the focal priorities of this sub-regional cooperation. According to IRM-

AG (2008), most of the tasks of the energy sector are included in the overall work plan

for the development of power trade in the region agreed to in April 2005 by all GMS

countries and their development partners through the Regional Power Trade

Coordination Committee (RPTCC).

In this spirit, Cambodia has signed various power sector cooperation agreements

with its neighboring countries. These agreements are in line with energy cooperation

and eventual regional integration of the Greater Mekong Subregion. A power

cooperation agreement between Cambodia and Vietnam was signed on June 10, 1999.

With this agreement, power supply to border areas by medium voltage connections and

interconnection between high voltage lines are promoted (EDC, 2010). Likewise,

Cambodia and Lao PDR entered into a power sector cooperation agreement on October

21, 1999.

MoU on power cooperation between Cambodia and Thailand was signed on

February 3, 2000. EDC (2010) stated that “this MoU provided a framework for the

power trade and technical assistance between these two countries and opened power

access to the third countries.” ADB (2007b) stated that the power sector cooperation

agreement between Cambodia and Thailand set up a framework for power trade and

technical assistance between the two economies.

The national power master plan was updated in 2004 for the purpose to promote

electric power development to be in line with the GMS regional master plan (ADB,

2009). At the present, PSDP 2007 provided an overall plan of action for the

implementation of electric power development plan. Generation and transmission

master plan is presented in the following Tables 11 and 12.

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Table 11: Generation Master Plan 2008-2021

No. Year Power Station Type MW Remark

1 2008

SR-BTB-BMC - Thailand Import 80 Completed in 2007

2 Kampong Cham - Vietnam Import 25 By 22 kV

3 2009 Phnom Penh - Vietnam Import 200 Completed

4

2010

Stung Treng - Lao PDR Import 10 By 22 kV

5 Kamchay Hydro 193 Postpone to 2011

6 Kampong Cham - Vietnam Import 10 Cancel

7 2011

Kirirom III Hydro 18

8 Coal SHV Coal 100

9 2012

Stung Atay Hydro 120

10 Coal SHV Coal 100

11

2013

Retirement - C3 (GM) DO 3


13 Lower Russei Chrum Hydro 338

14 Upper Russei Chrum Hydro

15 2014 Coal SHV Coal 100

16

2015

Stung Tatay Hydro 246


18 Stung Treng - Lao PDR Import 20

19 Kampong Cham - Vietnam Import 22

20 2016

Lower Se San II Hydro 420

21 Lower Sre Pok II Hydro

22 2017 Stung Chay Areng Hydro 240

23 2018 Coal SHV Coal 300

24 2019 Sambo Hydro 450

25 2020 Kampong Cham - Vietnam Import 31

26 2021 Coal/Gas SHV Coal/Gas 450

Source: EDC Annual Report 2010.

165

Table 12: Transmission Master Plan 2008-2021

No. Year Project High Case

Remark Line Type

Section (mm2)

Line Length (Km)

1 2008 230kV VN-PP S/S Connection

D-C 630 111 Completed in 2009

2 2010 230kV Takeo-Kampot D-C 400 100 Postpone to 2011 3 2010 115kV Lao PDR-Stung Treng D-C 240 56 Postpone to 2014 4 2010 230kV Kampot-SHV D-C 630 82 Postpone to 2013 5 2011 115kV Kampong Cham-Kratie D-C 630 87 Postpone to 2015 6 2011 230kV Kampot-Kamchay Hydro Connection D-C 630 20 7 2011 115kV Stung Treng-Kratie D-C 400 130

8 2012 230kV WPP-Kampong Chhnang-Pursat-Battambang

D-C 630*2B 310

9 2012 230kV Pursat-O Soam D-C 630 80 10 2012 115kV O Soam - Atay include S/S D-C 630 30 11 2012 115kV GS1-SWS-NPP D-C 250*2B 28 12 2012 115kV GS2-SPP D-C 250*2B 25 13 2012 115/230kV NPP-Kampong Cham D-C 400*2B 120

14 2013 230kV Lower & Upper Russei Chrum - O Soam

D-C 630 30

15 2013 230kV WPP-SHV include Veal Rinh S/S D-C 630 220 16 2014 115kV SPP-EPP-NPP D-C 250 20

17 2014 115kV EPP-Neak Loeung-Svay Rieng S/S connection

D-C 250*2B 122

18 2017 230kV Kratie-Lower Se San 2 - Vietnam D-C 630 90 19 2017 230kV WPP-NPP D-C 630 25

20 2017 230kV NPP-Kampong Cham-Kratie-Se San 2 - VN

D-C 630 300

21 2018 230kV Sre Ambil-Koh Kong-O Soam D-C 400 200 22 2019 230kV Sambor-Kratie D-C 630 30

23 2021 230kV Kampong Cham-Kampong Thom-Siem Reap-Battambang-Thailand

D-C 630 350

Source: EDC Annual Report 2010.

5.3. Electricity Import from Vietnam

As outlined in the MoU on APG and GMSECP, electricity is one of major energy

commodities identified for cooperation in terms of assistance, trade and investment.

With limited capacity to produce electricity domestically, Cambodia needs to cooperate

with neighboring countries to fill the energy gap. Currently, Cambodia imports

electricity from all neighboring countries, including Lao PDR, Thailand, and Vietnam.

Cambodia’s import of electricity from Lao PDR is currently at 22 kilovolts (kV) to

areas in Steung Treng province. The import from Thailand is currently at 22 kV via

166

various connections and currently at 115 kV through the Thailand-Banteay Meanchey-

Battambang and Siem Reap lines. Likewise, the import from Vietnam is at present at

22 kV via a number of connections and at 230 kV through the Vietnam-Takeo-Phnom

Penh 230 kV line (EAC, 2010).

In regard to Vietnam, there is an Electricity Trade Agreement between the MIME of

Cambodia and the Ministry of Industry of Vietnam. Governmental agencies, such as the

EDC and Electricity of Kratie of Cambodia, have signed Power Purchase Agreements

(PPAs) with Vietnam Power No.2 for the electricity import at a number of points for

supply of electricity to areas located near the Cambodia-Vietnam border either by

themselves or through other licensees.

According to the report released by EAC, Cambodia’s import of electricity from

Vietnam totaled 518.1 million kWh in 2009 (EAC, 2010). It jumped about five times

the level of the previous year which was 100.1 kWh. This substantial import was about

40.0 percent of the total electricity produced domestically; the total electricity generated

in 2009 was 1,234.6 million kWh according to data released by EAC in 2010.

EAC (2010) also stated that with grid substations (GS) at Takeo province and GS4

at Phnom Penh in Cambodia, the double circuit 230 kV line from Vietnam to Phnom

Penh was commissioned in 2009. Hence, given stable electricity import from Vietnam,

EDC could terminate PPA with SHC (Cambodia) International Pte Ltd for the high-cost

diesel generation at Phnom Penh.

It is noteworthy that import of electricity from Vietnam has not only reduced the

burden of demand for electricity but also the price. EAC (2010) revealed that based on

the PPA, which was signed between Vietnam Power No. 2 and the EDC and other state-

owned utilities in Cambodia, the Vietnam Power No. 2 charges a fixed tariff rate at 6.9

US¢ per kWh for supply to Cambodia at medium voltage lines (22 kV or 15 kV).

Meanwhile, investments from Vietnam in the electricity sector are significant.

Recently, an electrical Vietnamese company has invested USD 3 million in its

Cambodian factory, and is hoping to inaugurate its operation in mid-2012 and employ

between 100-120 people (PPP, 2011).

Increased trade and investment in the electricity sector between Cambodia and

Vietnam are rather substantive, but their challenges, obstacles, and opportunities have

not been widely studied. More importantly, the economic impact of this electricity

167

market integration has been barely noticed. Therefore, a study to review this integrated

electricity market and its impact should be conducted to shed light on the possibilities

arising from further integration.

6. Investments in the Electricity Sectors

6.1. Current Situation

In line with the policy of the RGC in increasing electricity coverage, investments in

the electricity sector have continued to increase over the past decade. With sole

responsibilities of EAC in granting licenses to ESPs, the number of licenses issued is on

the rise. According to data released by the latest report of EAC, the total licenses issued

by EAC increased from 21 in 2002 to 278 in 2010.

Out of the total 278 licenses issued in 2010, the number of consolidate licenses is

221 which takes the biggest share. The second biggest share is the distribution license

which reached 27 followed by the generation license which is at 19 licenses. The break-

down of licenses by category is illustrated in the following Table 13.

Table 13: Number of Licenses Issued by Category during 2002-2010

Type of License 2002 2003 2004 2005 2006 2007 2008 2009 2010

EDC 1 1 1 1 1 1 1 1 1

Generation 6 7 8 11 14 14 20 19 19

Distribution 4 7 8 9 13 16 21 25 27

Consolidate (Generation + Distribution) 10 69 87 98 114 147 172 197 221

Retail 1 1 1 1 1

Special Purpose Transmission 1 1 3 3

Consolidate

(SPT + Distribution) 2 3 6

Total 21 84 104 119 143 180 218 249 278


168

Regarding big energy investment (over USD 1 million), four investment projects

were approved by the Council for the Development of Cambodia (CDC) in 2010. Total

registered capital for those four projects was USD 20 million. It recorded an increase of

around 41% from USD 14.2 million in 2009.2 Though there was no investment project

in the energy sector approved in 2011.

6.2. Investment Shortage in Electricity

Expansion of electricity capacity and coverage requires enormous capital

investments. Yet, the government is unlikely to be able to allocate its limited budget for

this huge financial requisite of investments. As a result, private sector participation is of

crucial importance to accelerate power sector development.

Low cost of electricity is one of the RGC’s priorities to attract both foreign and

domestic investments and to eradicate poverty as clearly stated in the NSDP Update

2009-2013, an overarching national development policy paper (MoP, 2009). This

policy paper encourages participation of the private sector in electricity investment in

various areas such as electricity generation and distribution, expansion of national

transmission grid that facilitates power imports from neighboring countries, and the

hydropower development projects (Ryder, 2009).

A national power grid is a crystal-clear goal of RGC to distribute electric power

service to all villages across the countries (EAC, 2011). It is also to connect with

transmission lines of neighboring countries, as regional integration is the defined target.

Hence, high-voltage transmission connections, large-scale hydropower dams, and coal-

fired plants have been the focused priority for Cambodia’s power development plan

(Ryder, 2009).

Private electric power producers are, thus, unlikely to sustain their businesses in the

long term. Ryder (2009) found that “Cambodia’s private electricity companies provide

essential service yet the EAC describes them as an ‘interim solution’ until the state

utility, EDC, can bring its preferred IPP projects online.”

According to Purka & Litwin (2003) and Ryder (2009), REEs, small-scale electric

power service providers delivering electricity to rural households, are operating in a stiff

2 Data compiled from the CDC.

169

business environment. Access to affordable capital is a common obstacle for most of

REEs if not all, and requesting long-term permit from the regulatory agency to operate

their businesses is very difficult. They also operate under high levels of uncertainty due

to unclear rules for stand-alone operations, mini-grid operations, and future larger grid

connections (Ryder, 2009).

Hence, private small-scale investments in the electricity sector seem unable to be

sustained in the long term, and only large-scale investments appear to be viable. Break

through investments in the electricity sector require a huge amount of capital, and risk is

quite high in terms of investment payback. Therefore, capital requirement is very likely

an investment barrier causing the current investment shortage in this sector. A lack of

legal and regulatory framework in the sector is also a determinant of the investment

shortage.

6.3. Policy Options

As electricity imports represent a large proportion of total electricity supply and

electricity shortage remains persistent, developing further electricity production in the

country is a necessity. Moreover, Cambodia is endowed with an abundance of hydro

resources which should be utilized to increase electricity generation.

The power grid is, on the other hand, quite integrated with neighboring countries in

the GMS region, but is noticeably limited within the country. Specifically, the electric

power networks are well connected to neighboring countries such as Thailand, Lao

PDR, and Vietnam, but have not yet been sufficiently developed to provide electricity

across the country. Hence, more investment is required to hasten development of the

national power grid.

With these critical challenges, there are a few policy options readily available to the

government. First, enhancing the investment environment with a clear-cut policy

direction for this sector is of fundamental importance in order to attract foreign and

local investment. Second, public-private partnership for hydropower development and

grid expansion appears as a preferable solution as long as it is accompanied with good

environmental policy. Third, joint development of hydropower resources with countries

in the ASEAN or GMS region is one of the viable options to electricity sector

development in the country.

170

7. Concluding Remarks

Sources in the energy sector in Cambodia are mixed. However, the main source

consists mainly of diesel and HFO. As a result, the electricity price is significantly

volatile given the cost of diesel and HFO in the market. More importantly, the

electricity price is the highest in the Southeast Asia region as electricity is extracted

from these costly energy sources. A great discrepancy of electricity price is also found

between urban and rural areas due to difference in supply capacity, economies of scale,

load factor, power supply loss and risk premium between urban and rural ESPs.

However, demand for electricity keeps increasing dramatically in urban and rural areas.

MIME and EAC are the regulatory entities in the electricity sector. As set out in the

Law on Electricity, these two institutions have different functions and responsibilities.

Meanwhile, key players in the electricity market include the EDC, IPPs, and REEs.

Nonetheless, the EDC is the most influential, forming almost a monopolistic public

utility providing electricity to Phnom Penh capital and other provincial towns.

Cambodia seems to be on track in implementing the APG action plan, completing

two connection projects with Thailand and Vietnam. MoUs with three neighboring

countries have already been signed to implement the electricity market integration as set

out in the GMS cooperation framework. This has reduced the burden for electricity

demand as well as tariffs to some extent.

Investment in the electricity sector has increased steadily during the past decade.

However, this sector still remains under invested given rising demand. Big investment

projects seem to be preferred in the energy sector development plan of the government.

Thus, capital is very likely the most challenging constraint in addition to the lack of

legal and regulatory framework, and high risk of investment paybacks.

Therefore, an improved investment environment is the pre-requisite to attract more

investment in the sector to serve increasing demand for electricity as the economy

grows steadily.

171

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